The Historical Speakership
Dr. BILLINGTON. It is my pleasure as Librarian of Congress to be
here with you at this commemoration of Speaker Cannon and this happy
gathering of so many distinguished and historymaking Speakers of the
House. I always say that the Congress of the United States has been the
greatest single patron of a library in the history of the world,
gathering in books and materials as no other legislature, or no other
government for that matter, has done so effectively. The collections
come to us through copyright deposit of the creative output of the whole
private sector of America, and also include much of the world's
knowledge: two-thirds of our books are in languages other than English.
I have to say that all of the Speakers that have been discussed so
far, as well as the Speaker yet to come, have themselves played
interesting and important roles sustaining the idea that every
democracy--and especially one in a big, complex country like this--has
to be based on knowledge and on ever more people having ever more access
to ever more information. That was certainly true of everyone on the
last panel that spoke, and I want to just take a moment to particularly
single out Vic Fazio who, in his thankless work as chairman of the
Appropriations Subcommittee on the Legislative Branch, played a
particularly important role in the restoration of the Jefferson
Building, without which that beautiful, extraordinary structure would
not be seen in the same beauty and majesty that it is today. He also
offered the first congressional support for the Library's digital
outreach to the Nation, which has now reached the point that we had 3
billion electronic transactions last year. This began in a small way
with an important congressional appropriation, even though it has been
largely funded by private money.
And I should also mention in that regard the special role that
Speaker Newt Gingrich played with his desire to have congressional
information placed online: the whole THOMAS system owes a great deal to
his initiative and support. I am here in active, humble gratitude for
past and future users of the Library of Congress and also to give thanks
to the private supporters of this important centennial; the foundations
that have also made it possible; and, of course, to the Congressional
Research Service under Dan Mulhollan's able leadership for putting all
of this together.
My job today is to introduce a real expert on this whole subject,
Professor Robert Remini. He is associated with the Library to fulfill a
congressional mandate, a mandate from the House in particular, to
produce a history of the House of Representatives--one that would have
scholarly substance and at the same time be accessible to a broad
audience. We have been very fortunate to have enlisted the services of
one of the most distinguished of American historians, Robert Remini. He
is at present a distinguished senior scholar at the Kluge Center at the
Library of Congress. As some of you may know, last week we gave out the
first international prize in humanities and social sciences at the Nobel
level through a Kluge endowment, and that has enabled us to bring some
very distinguished scholars to the Library of Congress. The former
President of Brazil, Fernando Henrique Cardoso, just joined us last
week. One of the most distinguished of all of these scholars is Bob
Remini, and certainly one of the most important of the projects being
done there is his history of the House of Representatives.
Despite the bad light and my failing eyes, I will read you some of
his many distinctions. He is compiling a congressionally authorized one-
volume narrative history of the House of Representatives, which he has
called--I'm quoting now--``an extraordinary institution with its vivid
and sometimes outrageous personalities.'' You can see the little bit of
adjectival twinkle already even in this brief characterization. He hopes
his book will capture--I'm quoting again--``all the excitement and drama
that took place during the past 200 years so that the record of [the
House's] triumphs, achievements, mistakes and failures can be better
known and appreciated by the American people.''
Professor Remini was educated at Fordham University, and graduated
in 1947 from Columbia University, where he finished his Ph.D. in 1951.
He has been a teacher of American history for more than 50 years, the
author of a three-volume biography of Andrew Jackson, and many other
studies of Jackson's Presidency and of the Jacksonian era. He has also
written biographies of Henry Clay, Daniel Webster, John Quincy Adams,
and Joseph Smith. We know him as an earlier collaborator with the
Library of Congress because he crafted the historical overview to a
volume called Gathering History: the Marion S. Carson Collection of
Americana in 1999. This is one of the Library's most important private
collections of American history. It deals particularly with families in
Pennsylvania from the early 1800s, and includes the first picture of a
human face probably ever taken anywhere by a photograph, which was
taken, it turned out, in Philadelphia, and which turned up in this
collection. Professor Remini brought it to life in this wonderful
volume, as he has brought to life so much of the American past and
particularly our history and the functions of our government.
Thus, we have with us a historian who has looked at America through
a variety of perspectives from the top down, from the bottom up, through
the lives of great men, and through the artifacts of American cultural
life. Now he is writing about the legislative institution that for over
200 years has grown to be the most consequential one in the free world.
It is really hard to imagine a person better qualified by his long
experience, and, I might add, by his energetic prowling of the halls of
the House that he has been doing for the better part of a year. He has
won many friends here. It is hard to imagine anyone better qualified by
learning, experience, and temperament to undertake this task.
Necessarily, his perspective, of course, has given him some insight into
the role of Speakers over the years, and it is about them and their
activities that he will speak to us this afternoon. So, it is my
pleasure to present to you as close as we will ever get to a full
chronicler of some of the early history of the House and someone who,
with his own energy, vitality, and endless questioning for more than a
year now, has this noble task of recording the story of the most
important and the most representative legislature in the world. I give
you Professor Robert Remini.
Professor REMINI. Thank you very much, Dr. Billington, for that
gracious introduction. I have a lot of people to thank. First of all,
the Congressional Research Service who invited me here to come and talk
about what I'm doing now in writing the history of the House of
Representatives. I want to begin by singling out Congressman John
Larson, whose idea it was to have a history written of this most
important institution. Such a work has never been really done well, but
there are indeed many books written about the House. I also want to
thank Dr. Billington for inviting me to become a Kluge Scholar, and for
providing me with an office in the Library of Congress, where I could
write the history.
I wasn't sure I could do justice to this history. I've always done
biographies. I've never written an institutional history. But all of the
biographies, or most of them, are about people who have served in the
House, like Jackson, like Martin Van Buren, like Henry Clay, like Daniel
Webster, like John Quincy Adams. And I thought writing such a history
would be fun. I could come into Congress and meet all the Congressmen
and get involved in congressional politics, observing the problems and
challenges that the Members have to contend with.
One of the things that is disheartening to me is that we do not
honor the men and women who have shaped this most important institution.
And especially the men who were the Speakers. This institution has
evolved, and it is continuing to evolve, just as the Office of the
Speaker has evolved from what Speaker Foley said was the British system.
Which is what the Founders, I think, intended.
When I was researching Henry Clay, a student of mine came to me and
said, ``What are you working on now?'' And I said, ``I'm doing a
biography of Henry Clay. Do you know who Henry Clay was?'' He said,
``Sure.'' I said, ``That's wonderful. Who was he?'' He replied, ``He was
the father of Cassius Clay.'' And he didn't mean the abolitionist
Cassius Clay, either.
Who today knows who Henry Clay was, for example? The Senate has
selected five, I think it is, of their greatest Senators and recognized
them. There is a room where their portraits are displayed. The presiding
officers have their busts done after they step down. Two months ago,
they had a commemorative ceremony for former Vice President Quayle. If
you go into the Chamber of the House of Representatives, what do you
see? George Washington--well, that's OK. I mean after all, he is the
father of the country--you wouldn't have a republic without him. But
what's his relationship to the House of Representatives? He gave it the
back of his hand the first time they asked him for the appropriate
documents related to the Jay Treaty so that they could legislate the
moneys needed to implement the treaty. He wouldn't give the documents to
them, replying instead, ``If you want to impeach me, then you can ask
for these documents.'' But there he stands. In truth, he is the father
of the country and deserving of great honor.
On the other side of the rostrum is the Marquis de LaFayette. Now
you tell me in God's name what did LaFayette have to do with the House
of Representatives? He was the first foreigner to speak to the House.
Big deal. You see what I mean? Rather, we should honor the people who
have done important things in the House such as Henry Clay. The
Founders, I think, intended that the legislature would be central to the
whole governmental operation. Notice the Constitution talks a great deal
about the Congress and all of its responsibilities and powers while
those not listed are reserved to the States and the people. But then you
look at the other two branches, which are supposed to be separate and
equal, and there is relatively little discussion. The judiciary--there
will be a supreme court and such inferior courts as Congress shall, from
time to time, establish. The executive was not much better. He may
receive reports from the departments. What departments? It does not say.
It was up to the Congress, then, to flesh out these other two co-equal
branches.
It was also expected that the men who attended the First Congress
would complete the process of establishing the government, and indeed
they did. First, they chose a Speaker. As the present Speaker, Dennis
Hastert, said, ``That's the first office that is mentioned.'' And in
creating the office they were thinking, I believe, of someone akin to
the British Speaker, who was nothing more than a traffic cop,
recognizing one person over another, calling for votes, being non-
partisan.
The Office of the Speaker changed almost immediately with the
formation of political parties because then you had two distinct views
about how the government should operate. And I must say, as an aside,
that what has happened here today having this conference is something
that should be done much more often. There ought to be a greater
awareness and sense of our past. We honor the living Speakers here
present, but how about those who came before? This is, in part, my job
and I think the fact that the Members of the House have asked for a
history of their institution shows some indication that they are anxious
to have the collective memory of the House preserved and respected.
Theodore Sedgwick was the first Speaker who really used his office
in a partisan way. But none of those early leaders were really creative
in revolutionizing the office. Not until you get Henry Clay. He was
elected on the first vote of the first day of his own tenure in the
House. But the Members knew who he was, and his reputation. They wanted
somebody who could really lead this country in the direction that they
felt they needed to go. And here was a man who saw his opportunity to
take an office which was practically insignificant and so reshape it to
be the most powerful in the country politically after the Office of the
President. Because that is what, in effect, he did. And the Members who
elected him Speaker knew he would be dealing with very difficult men, in
particular John Randolph of Roanoke. Randolph had been a powerful
chairman of the Ways and Means Committee and Jefferson's floor manager
in the House until he broke with him. He brought his dogs into the
House. How about that? And anybody who tried to interfere, he would
strike them with his riding whip. It was chaotic.
Let me give you an example of some of the chaos that we've had in
the House. I'm sort of jumping out of the period for the moment, but
I'll be right back. I'm quoting from the Cincinnati Enquire of June 20,
1884. ``If every man in the House should fall dead in his seat, it would
be a God's blessing to the country. And in less than two months, we
would have a new set of men who would be just as wise and good as their
predecessors. Today the Congress is a conclave of hirelings, wind bags,
mediocrities and dawdlers. Members of the House are sprawled in their
chairs and put their feet on the desks. They abuse door keepers, munch
peanuts, apples, toothpicks, suck unlit cigars. [Uncle Joe Cannon was a
great one for sucking unlit cigars.] Spit tobacco on the rugs and
carpets and clean their fingernails with pocket knives. No matter how
persistently the Speaker pounded the gavel, the representatives kept
right on talking to one another. With bar rooms in the cloak rooms and
below stairs, whiskey flowed as freely as oratory. Saturdays were
special in the House--then representatives could hold forth with bunkum
speeches that no one heeded on any subject they pleased and fill 70
pages of the Congressional Record.''
It was when you had strong leadership and Speakers who embrace a
vision of where they think the country needs to go and have the will,
the brains, the strength to direct them in that direction, toward that
goal, that is when the House really asserts its authority. Clay had his
American system, and for 10 years it was the House of Representatives,
under his direction, that determined domestic policy in this country,
which is amazing. But he had problems in handling particular Members. A
man like John Randolph of Roanoke, for example. They finally fought a
duel, as you probably know. Once, they were walking down the street
toward one another, each coming closer and closer, neither willing to
give way. Let the other man step aside for me. And when they got
practically eyeball to eyeball, Randolph stopped in his tracks and he
looked at Clay and said, ``I never side-step skunks.'' When Henry Clay
heard that he said, ``I always do.'' And he jumped out of the way!
Speakers have to be smart to be great, I find. Sam Rayburn said it
best, ``You need two things to be Speaker: brains and backbone.'' I have
found that many of the great Speakers have very sharp minds and very
sharp tongues. You heard what Speaker Foley said about Speaker Reed--
I've got a lot of examples of Reed's quick mind and tongue. For example,
he said to one Representative at the time, ``You are too big a fool to
lead and you haven't got enough sense to follow.'' In other words you're
useless.
Henry Clay, of course, is a very unique figure. And the pity is that
he has not had the attention and recognition that the House itself ought
to accord him. And, it should be noted, when you don't have a Henry
Clay, you get a Thaddeus Stevens, who isn't the Speaker, he's the
chairman of the Ways and Means Committee, but during Reconstruction, the
most powerful man operating in the House. It's not until you get toward
the end of the century with Samuel Randall and Thomas Reed that things
change, men who then begin to realize that the only way you can really
do the people's business and get men to attend to their duties is to use
the rules and shape the rules for that purpose.
Many Speakers have described what they believe are the
responsibilities of a Speaker. Notice the Speaker today talked about
what he felt his duties were. Henry Clay, when he spoke of them, said
that they ``enjoin promptitude and impartiality in deciding various
questions of order as they arise; firmness and dignity in his deportment
toward the House; patience, good temper, and courtesy toward the
individual Members, and the best arrangement and distribution of talent
of the House, in its numerous subdivisions for the dispatch of the
public business, and the fair exhibition of every subject presented for
consideration. They especially require of him, in those moments of
agitation from which no deliberative assembly is always exempted, to
remain cool and unshaken amidst all the storms of debate, carefully
guarding the preservation of the permanent laws and rules of the House
from being sacrificed to temporary passions, prejudice or interests.''
Each of the many men who have served in this office tries to
describe his duties in a way that recognizes that there is this tension
between a man who is really the majority leader of his party and also
the presiding officer of the House who is expected to be impartial and
even-handed in his relations with all the Members.
In the 19th century, they didn't have a majority or a minority
leader as such. Presumably, the man who lost the election for Speaker
from the opposite party was the minority leader. But there was no whip.
All of that comes at the end of the 19th century. And the role of
Speaker is one in which he uses his office to forward a program or a
vision that he has (or is stated in the party platform) that says that
these are the things that we stand for, that we feel are important and
helpful to the American people, and want to see legislated. Yet he has
another role, which is to be the moderator of a number of men who can
disagree violently and have in the past actually attacked each other
with knives. We have lots of stories just before the Civil War, as you
know, when they were physically attacking one another because of their
differences over slavery. How do you balance those two aspects of the
Speaker's position? Notice that the Speakers today always mention that
they tried to be fair in their dealings with all the Members to be sure
everybody and each side receives equal treatment. Reed, who was probably
the first great Speaker after Clay, said this: ``Whenever it is imposed
upon Congress to accomplish a certain work, it is the duty of the
Speaker who represents the House and who, in his official capacity is
the embodiment of the House to carry out that rule of law or of the
Constitution. It then becomes his duty to see that no factious
opposition prevents the House from doing its duty. He must brush away
all unlawful combinations to misuse the rules and he must hold the House
strictly to its work.'' He also said, ``The best system to have is one
in which one party governs and the other party watches. And on general
principle, I think it would be better for us to govern and the Democrats
to watch.''
He had trouble with the Democrats who would pull what was called a
``disappearing quorum.'' They would call for a roll call, and they were
present in the Chamber, and those who did not respond when their names
were called were marked absent. Finally, Reed decided he would put an
end to the disappearing quorum. So when the clerk called the roll and an
individual didn't answer, the clerk was ready to mark him ``absent.''
When the clerk got to the Member from Kentucky by the name of McCreary,
who did not answer and would normally be marked absent, Reed directed
the clerk to mark him present.
McCreary objected. ``I deny your right, Mr. Speaker,'' he said, ``to
count me as present.'' Then Reed very calmly turned to him and said,
``The Chair is making a statement of the fact that the gentleman from
Kentucky is present. Does he deny it?'' So from then on, if a Member was
physically present in the House, he was counted present whether he said
``present'' or not. Sometimes when they would start the roll call,
Members would duck under the chairs and under the tables so they
wouldn't be seen.
Dilatory amendments were another technique to stall action on bills.
Sometimes the session ended with 1,000 bills still waiting for action.
When Reed was Speaker not only did they pass all the bills they were
supposed to, they appropriated for the first time $1 billion. And people
said, ``My God--a billion dollars.'' And Reed responded, ``It's a
billion dollar country.'' Joseph Cannon inherited this power. Now Cannon
was a very gregarious, delightful, loveable tyrant. He used his power to
maintain the status quo. They said if there had been a meeting or a
caucus to decide whether creation would be brought up out of chaos,
Cannon would have voted for chaos rather than creation. Let's keep
things the way they are. This was his motto. When he was the chairman of
the Appropriations Committee, he supposedly said, ``You think my
business is to make appropriations, it is not. It is to prevent their
being made.'' That gives you some idea of his position. He also said to
William McKinley, ``That it was easier for a politician to get along
with a reputation as a sinner than with a reputation as a saint. I have
been accused of being a profane man, who played cards and showed other
evil tendencies. While McKinley had a reputation for being thoroughly
good and kind and gentle. Who never swore or took a drink or played a
game of cards. He couldn't talk plainly to people because of his
gentleness. And he could not take a glass of beer without shocking the
temperance people who had endorsed him. On the other hand, I could do
much as I pleased without unduly shocking anybody. For little was
expected of me. If I showed gentility, I simply caused surprise at my
improvement. Or,'' he said, ``I could throw the responsibility on the
newspapers for misrepresenting me.''
Cannon also said that he had looked into the matter of being
Speaker. ``I have control of the South half of the Capitol. I manage the
police, run the restaurant, settle contests over committee rooms and in
general, I'm a Poo Bah \1\.'' The Speaker who followed him was a totally
different man. As you know, Cannon became Speaker in 1903, which is 100
years ago. So in that sense, we do honor him particularly today. He
showed what it was like to have the kind of government in which nothing
really happened. He opposed any kind of reform, whether it came from his
own party or not. He disliked Teddy Roosevelt and his program, as well
as the program of the opposition.
\1\ A reference to a character from Gilbert and Sullivan's operetta The
Mikado.
But he finally pushed it too far. The revolution continued and he
was stripped of his powers in 1910. The House then had to remake itself
and the Office of the Speaker. You have people coming forward like
Nicholas Longworth, who aided the process. When he was elected Speaker
he recognized this tension between presiding over the House and leading
his party. He said, ``I propose to administer with the most rigid
impartiality, with an eye single to the maintenance, to the fullest
degree, of the dignity and the honor of the House and the rights and the
privileges of its members. I promise you that there will be no such
thing as favoritism in the treatment by the chair of either parties or
individuals. But on the other hand, the political side, to my mind,
involves a question of party service. I believe it to be the duty of the
speaker standing squarely on the platform of his party to assist in so
far as he properly can the enactment of legislation in accordance with
the declared principles and politics of his party. And by the same
token, to resist the enactment of legislation in variance thereof. I
believe in responsible party government.''
I think, following him, the most important Speaker--and I'm not
going to comment at all on those who are still living. I'll have my say
when the book is finished later in a few years--was Sam Rayburn, who
presided longer than any other Speaker. He is a fit candidate for
recognition as a statesman and great leader. Lyndon Johnson seemed to
think otherwise. He claimed, ``Rayburn is a piss poor administrator. He
doesn't anticipate problems and he runs the House out of his back ass
pocket.'' Others had a better opinion in which one man said, ``Mr. Sam
is very convincing. There he stands, his left hand on your right
shoulder holding your coat button. Looking at you out of honest eyes
that reflect the sincerest emotions. He's so dammed sincere and
dedicated to a cause, and he believes in his country and his job, and he
knows it inside out so well that I would feel pretty dirty to turn him
down and not trust him knowing that he would crawl to my assistance if I
needed him.'' I think that almost sounds like what they [participants in
this conference] were saying earlier with respect to Tip O'Neill.
Rayburn himself said--and I mentioned this before--that a man needs to
have a backbone and brains in his head. He remembered Reed, and he said,
``I remember him well--big head, big brains.'' He added, ``I always
wanted responsibility, because I wanted power. The power that
responsibility brings. I hate like hell to be licked. It always kills
me.''
I think what the Speakers, the good ones, have learned is that the
only way you get things done is not to treat the Members the way this
man [pointing to a picture of Cannon] did, as just servants or slaves to
do his bidding. Instead, treat those men as his equal, to whom he can go
and make his pitch with all of the sincerity and the passion in him if
he really cares about the bill that he's trying to sponsor, and get
these men to know that he feels sincerely that this is what the people
want. This is what is good for the country. Because that, in the long
run, is what their duty is to the country, to the Nation. They are
legislating for all of us and we only hope to God they are doing it for
all the right reasons and are led by men and women who care passionately
about what they were doing.
My research has taught me something else that surprised me. And that
was how intelligent, how gifted so many of the men and women who are
Representatives today really are and how mistaken the American people
are about the quality of the men and women who serve them. I think it is
a great shame, and I hope to do something to change that opinion. Thank
you very much.
Dr. BILLINGTON. We're a little over time, but I think we have time
for perhaps one question if there is one from the floor.
Question. Is there in Longworth's speakership the beginnings of the
process of trying to find the levers by which to recentralize power in
the House that continues through Rayburn and subsequent Speakers. Can
you speak to that?
Professor REMINI. You see, you have two different types, and I
didn't really have time to develop them, in which you get men who are
very, very intelligent, quick-witted, well-read. And those who come out
of the prairie like Uncle Joe and are much more interested in the
process rather than in the results. And they know, of course, that they
have these levers of power and they have to use them. When it got to a
point where power was misused, then you got a new man, Longworth, who
was intelligent, educated, and felt passionately about the House and
what he was doing. He was a man of great ability to handle different
sides of a difficult question. He could handle difficult people. After
all, he was married to Alice Roosevelt, who was a very difficult woman.
He knew how to win compromises. You know, I'm going off on a tangent,
but I hope I'm making the point.
When I wrote my book on Henry Clay, the title of it was Henry Clay:
The Great Compromiser. And the editor said that, ``No, today people
think of compromisers as men and women who have no principles at all.''
But that is not what Henry Clay was. Henry Clay was looking for
solutions to avoid conflict. To him compromise meant simply this: that
each side gives something that the other side wants so that there is no
loser and no winner. Because if you have a loser and a winner, you are
going to perpetuate the quarrel. The only way to resolve these problems
is to give a little, to get a little, and be willing to accept that.
That's what happened with the Missouri Compromise. That's what happened
with the Compromise of 1850. That's what happened with the Compromise
Tariff of 1833. And that was the lesson that they understood.
This is what Longworth then tried to do. He wanted to compromise the
differences between those like Cannon who wanted an authoritarian kind
of leadership, and those who were determined to go the other way and
have a freewheeling, very liberal kind of leadership. And it's that kind
of individual who can find those means to make men who have to work
together co-exist. That's why I think it's important today to have
sessions like this, so that men and women of the two different parties
can at least speak to one another. Did you notice how often it was
mentioned today the civility that once existed seems to have been
diminished? Oh, there's always incivility. When Thomas Hart Benton made
some remarks that offended southerners, the argument became very heated.
When one southerner reached into his pocket and pulled out a pistol,
Benton tore open his shirt and said, ``Shoot, you damn assassin--
shoot.'' And you can imagine what happened in the Chamber.
Oh, there are some glorious scenes of pandemonium in the House and
in the Senate as men tried to compromise their differences. And I'm not
saying that you have to give up what is essential to your position. But
you have to give in order to take. I don't want to go into any specifics
with Longworth as to his style. It would take more time than I have. But
it is that kind of leadership, I think, that makes the difference
between great Speakers and those who are failures. I've always thought
that Speakers are like Presidents. We've had great ones and we've had
failures, and a lot of in-betweens. We have the Lincolns and the
Washingtons and the Roosevelts who were Speakers, and we also have the
Buchanans and the Hardings. The difference, I think, is one in which men
try to bring about a consensus for the sake of the American people and
what they need and what has to be done.
Dr. BILLINGTON. Many of you will remember that for the 200th
anniversary of the Congress, David McCullough spoke to a joint session
and pointed out how little attention has been paid to the history of the
Congress. He specifically mentioned a large list of Speakers for whom
there is no reliable, serious biography. Certainly the historical study
of the Congress as a whole is an important and neglected subject. I know
that former Congressman John Brademas is trying to set up an institute
for the study of Congress at New York University. There is great and
growing interest in this subject. So I hope that this conference is not
the last where we will get people together so that we hear both from the
distinguished Members who have sat in these important positions and from
the historical profession that gives us some perspective on it all. I
think you will all want to join me in thanking Bob Remini for sharing
with us his vitality and enthusiasm, that I think is infectious, and his
knowledge. We all look forward to seeing those qualities in the history
of the House when it comes out. Thank you again.